(2021) Examens de l'OCDE sur la gouvernance publique : Haïti - Renforcer l'administration publique pour une gouvernance résiliente et durable

OECD Public Governance Reviews HAITI STRENGTHENING PUBLIC ADMINISTRATION FOR RESILIENT AND SUSTAINABLE GOVERNANCE OECD Public Governance Reviews HAITI STRENGTHENING PUBLIC ADMINISTRATION FOR RESILIENT AND SUSTAINABLE GOVERNANCE OECD Public Governance Revie ws: Haiti STRENGTHENING PUBLIC ADMINISTRATION FOR RESILIENT AND SUSTAINABLE GOVERNANCE This document, as well as any data and map included herein, are without prejudice to the status of or sovereignty over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or area. Please cite this publication as: OECD (20 21), OECD Public Governance Reviews: Haiti: Strengthening Public Administration for Resilient and Sustainable Governance, OECD Public Governance Reviews, OECD Publishing, Paris, https://doi.org/10.1787/dfd5f806-en. ISBN 978-92-64-76449-1 (print) ISBN 978-92-64-36214-7 (pdf) OECD Public Governance Reviews ISSN 2219-0406 (print) ISSN 2219-0414 (online) Photo credits: Cover © ContentForAll/Shutterstock.com. Corrigenda to publications may be found on line at: www.oecd.org/about/publishing/corrigenda.htm. © OECD 2021 The use of this work, whether digital or print, is governed by the Terms and Conditions to be found at http://www.oecd.org/termsandconditions.  3 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Foreword The Republic of Haiti faces complex and multidimensional environmental, political, as well as social and economic developmental challenges, which hinder the proper functioning of public governance and the achievement of Haitian administration’s objectives. In response to these challenges, and in the face of acute and persistent regional disparities, the Haitian administration is pursuing a broad and inclusive reform agenda that includes the Strategic Plan for the Development of Haiti (Plan Stratégique de Développement d’Haïti - PSDH), the State Modernisation Programme 2018-2023 (Programme de Modernisation de l’État 2018-2023 - PME-2023), and the Public Finance Reform Strategy (Stratégie de Réforme des Finances Publiques - SRFP). These documents reflect the government's determination to pursue a strong public governance reform agenda and to achieve clear and ambitious social and economic development goals. The objectives of these reforms are to bring the country closer to emerging economy status, strengthen the rule of law, foster a more cohesive and inclusive society and renovate and modernise public governance. It is in this context that the OECD is collaborating with the Haitian administration by producing a Public Governance Review (hereinafter "the Review"), which aims to present a holistic account of public governance in Haiti. The review is structured around public governance issues identified in collaboration with the government and is accompanied by recommendations to help the country achieve its priority reform objectives. Anchored in a desire for continuity and coherence with existing initiatives, it thus represents an exceptional opportunity to consolidate past reforms and propose new initiatives, enabling Haiti to achieve its long-term strategic vision of promoting inclusive and sustainable economic growth for all its citizens. The recommendations proposed by the OECD are also intended to provide the government with guidance and analytical tools for the selection, coordination and evaluation of projects proposed for international support. In this regard, the Review recommends that Haiti pursue a comprehensive public governance reform programme, in line with the targets of the PME-2023 and Haiti's Strategic Development Plan, to make decision-making more strategic across government and to strengthen the capacity of the public administration and the centre of government in the following areas: centre of government-led coordination; evidence-based decision making; multi-level governance; strategic management of the public service; and open government and strategic management of public communication. In addition, the Review proposes a series of recommendations, the implementation of which depends in part on the national political will and the stability of political and socio-economic conditions. The Review thus makes recommendations that need to be integrated into a regular and ongoing process of reform across Haitian government and administration. In addition, in view of the COVID-19 pandemic, as well as current security and political events, the Review recommends extending the implementation period of the State Modernisation Plan beyond 2023, in order to ensure the success of public governance reforms. This report is part of a series of public governance reviews conducted by the OECD in member and non- member countries. It was conducted under the auspices of the OECD Public Governance Committee, with support from the Public Governance Reviews and Partnerships Division. The review was conducted in collaboration with the Office of Human Resources Management, a strategic body of the Office of the Prime 4  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Minister of the Republic of Haiti. It is based on evidence provided by the Government of the Republic of Haiti, including documented responses to a project-specific OECD questionnaire; two background reports produced by local experts; two fact-finding missions and a finalisation mission conducted remotely due to health and safety conditions, which brought together government and non-government stakeholders; and peer reviewers from France, Morocco, Senegal, the European Evaluation Society and Tunisia. This report is made possible by the support of the American People through the United States Agency for International Development (USAID). The contents of this report are the sole responsibility of the Organisation for Economic Co-operation and Development and do not necessarily reflect the views of USAID or the United States Government. The drafting of this report and the related fact-finding activities were carried out from February 2019 to June 2021. The report was approved and declassified by the Public Governance Committee by written procedure on 8 July 2021. It has been prepared for publication by the Secretariat.  5 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Acknowledgements The OECD's Public Governance Reviews are conducted by the Governance Reviews and Partnerships Division, headed by Martin Forst, Head of Division, in the Public Governance Directorate, under the responsibility of Elsa Pilichowski. The mission of the OECD's Governance Directorate is to help governments at all levels design and implement innovative, evidence-based strategies to strengthen public governance, respond effectively to diverse and disruptive economic, social and environmental challenges and achieve their stated targets, including public governance reforms. This review of public governance in Haiti was led by Adam Ostry, Head of the Public Governance Reviews Unit and Senior Project Manager, and coordinated by Emma Phillips, Policy Analyst in the same unit. Meghan Hennessy, Events Coordinator, Public Governance Review Unit, and Patricia Marcelino, Research Officer, Public Governance Review Unit, provided valuable administrative assistance to the project coordination team. Editorial work and quality control was provided by Ciara Muller, Communication Coordinator, Public Governance Review Unit, who also prepared the manuscript for final publication. Chapter 1, which presents the contextual factors influencing public governance reform in Haiti, was written by Marion Tolboom, with the assistance of Arnault Pretet, Analyst, Public Governance Reviews Unit, under the direction of Emma Phillips and Adam Ostry. Chapter 2, on coordination by the centre of government in Haiti, was written by Emma Phillips under the direction of Adam Ostry. Chapter 3, which discusses the link between strategic planning, the use of evidence and budgeting, was written by Claire Salama, Analyst, Performance and Results Unit, Public Management and Budgeting Division, and Alexandre Leroy, Analyst, Financial Management Reporting Unit, Public Management and Budgeting Division. Emma Phillips wrote Chapter 4 on multi-level governance with advice from Adam Ostry. Donal Mulligan, Analyst, Public Employment and Management Unit, Public Management and Budgeting Division, and François Villeneuve, Analyst, Public Employment and Management Unit, Public Management and Budgeting Division, wrote Chapter 5 on strategic human resource management. Carla Musi, Analyst, Open Government and Civic Space Unit, Open and Innovative Government Division, Emilie Cazenave, Analyst, Open Government and Civic Space Unit, Open and Innovative Government Division and Emma Cantera, Analyst, Open Government and Civic Space Unit, Open and Innovative Government Division, wrote Chapter 6 on Open Government and Government Communication. This review also reflects the contributions and assistance of a number of participants from across the Haitian government, without whom this review would not have been possible and to whom the team is grateful. Special thanks to:  Mr. Jean Roudy Aly, General Coordinator, Office of Management and Human Resources, Office of the Prime Minister, Republic of Haiti, and his predecessor Mr. Josué Pierre Louis;  Mr. Élie Jean-Philippe, Coordinator of the Technical Secretariat, Office of Management and Human Resources, Office of the Prime Minister, Republic of Haiti;  Mr. Henri Boucicaut, Coordinator, Office of Management and Human Resources, Office of the Prime Minister, Republic of Haiti; 6  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021  Mr. Pierre-Eugène Géraldy, Coordinator, Office of Management and Human Resources, Office of the Prime Minister, Republic of Haiti;  Mr. Thomas Wisner, Coordinator, Office of Management and Human Resources, Office of the Prime Minister, Republic of Haiti;  Mr. Georges Garnier, Coordinator, Unit for the Coordination of Delegations and Vice-Delegations, Ministry of the Interior and Territorial Collectivities, Republic of Haiti;  Mr. Ricardo Germain, Head of Department, Minister of Planning and External Cooperation, Republic of Haiti;  Mrs. Léonne Prophète, Director of Economic and Social Planning, Ministry of Planning and External Cooperation, Republic of Haiti. The OECD team would like to thank the seven peer reviewers who contributed to this review through their extensive knowledge and experience of public governance:  Mr. Jean-Marc Chneider, Head of the Office of European and International Foresight and Expertise, Directorate-General for Administration and the Civil Service, France;  Mr. Ahmed Khalid Benomar, Coordinator of the unit in charge of economic policy and investment, Head of Government Office, Kingdom of Morocco;  Ms. Sarah Lamrani, Director of Studies, Communication and Cooperation, Department of Administration Reform, Kingdom of Morocco;  Mr. Djiby Diagne, Deputy Director General, Operational Monitoring Office,Republic of Senegal; and  Mr. Baye Gueye, Operational Monitoring Office, Republic of Senegal.  Mr. Mondher Bousnina, President of the Body for Foresight and Support of the Decentralisation Process, Republic of Tunisia;  Ms. Danièle Lamarque, President of the European Evaluation Society. The review team would also like to thank the local OECD coordinator, Mr. David Alexandre, as well as Mr. Kesner Pharel, CEO of Group Croissance and his team, for their support during the fact-finding missions and the sounding board mission. The OECD also thanks Mr. Tony Cantave for sharing his knowledge with the project team through a background report. The review has received ongoing support from the U.S. Agency for International Development (USAID), led in Haiti by Mr. Chris Cushing, USAID's head of mission in Haiti. In this regard, the review team would like to extend special thanks to Mrs. Régine Dupuy, Senior Governance Advisor, USAID Haiti, and her team for their active contribution to the Public Governance Review process in Haiti. Finally, the OECD would like to thank her predecessor, Mr. Alphonse Nkunzimana, former Senior Governance Advisor, USAID Haiti, for his support in the definition and implementation of the project.  7 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Table of contents Foreword 3 Acknowledgements 5 Abbreviations and acronyms 11 Executive Summary 14 Diagnostics & recommendations 16 Towards better whole-of-government coordination by strengthening the centre of government 16 Making decisions based on relevant facts and data 18 Adopting a coherent and strategic approach to local development through more effective decentralisation and deconcentration and better multi-level governance 20 Promoting strategic public service management to meet the needs of citizens 22 Promoting more open, transparent and inclusive government to ensure that public policy reflects the needs of the population 24 1 Contextualising public governance in Haiti 26 Introduction 27 Understanding the economic and political history of Haiti to better comprehend current issues of public governance 28 Haiti today: political, economic and social challenges 31 Public governance in Haiti, a vision for the future and future challenges 35 Conclusion 37 References 38 Notes 40 2 Whole-of-government coordination led by the centre of government in Haiti 41 Introduction 42 Achieving the Haitian government's goals depends on increased coordination by the centre of government 43 The role of technical and financial partners in decision-making in Haiti 51 Conclusion and recommendations 59 References 64 Notes 67 3 Use of evidence in strategic planning and budgeting in Haiti 68 Introduction 69 8  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Haiti has set ambitious development goals, formalised in a multi-level strategic planning framework, which has methodological limitations 69 The Haitian government is working to implement performance-based budgeting, prior to which some fundamentals need to be put in place 75 Establish a robust system of monitoring and evaluation of public policies to improve public intervention and increase transparency 84 Conclusion and recommendations 96 References 100 Notes 103 Multi-level governance in Haiti 104 Introduction: a country marked by strong regional inequalities 105 Competences and resources of local authorities: between principles and realities 107 Creation of a strategic framework for multi-level governance in Haiti 120 Conclusion and recommendations 129 References 134 Notes 136 5 Strategic management of the public service in Haiti 138 Introduction 139 Haiti's senior public service must be strengthened and supported to improve its performance 144 Strengthen the recruitment system and improve career management in Haiti 148 Clarify institutional responsibilities for human resources management 153 Conclusion and recommendations 158 References 160 6 Open government and strategic management of public communication in Haiti 163 Introduction 164 Open government: transparency, accountability and participation 164 Strategic management of public communication 180 Conclusion and recommendations 194 References 199 Notes 203 Tables Table 2.1 Haiti, dependence on aid: 2017-2019 53 Table 3.1 The budget calendar in Haiti 79 Table 3.2 Comparing the evaluation and monitoring of public policies 85 Table 4.1 Risks related to decentralisation 106 Table 4.2 Organisation and legally established powers of local governments in Haiti 109 Table 4.3 Deconcentrated administration in Haiti 111 Table 4.4 Establishment of the decentralised territorial institutions provided for in the Constitution 113 Table 4.5 Which intergovernmental transfers for which goals? 118 Table 4.6. Departmental sectoral tables 124 Figures Figure 2.1 Official development assistance to Haiti: 2002 - 2019 52 Figure 2.2 Financial flows to Haiti by type (FDI, remittances, ODA): 2002-2019 53 Figure 3.1 Countries with a formal definition of evaluation 87  9 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Figure 3.2 An institution within the executive branch with governmental competences in the field of public policy evaluation 92 Figure 5.1. OECD Recommendation on Public Service Leadership and Capability 140 Figure 5.2 Officials and other central government employees, 2018 141 Figure 5.3 Existence of a law or document setting out in detail the managerial responsibilities of senior government officials 146 Figure 5.4 Differences between the management of positions for senior officials and other public servants 147 Figure 5.5. Talent management in the public service 149 Figure 5.6 Determining selection criteria in OECD countries 151 Figure 5.7 Body responsible for the promotion, coordination and administration of learning in the core public administration 156 Figure 6.1 Confidence in the national government in Haiti (2006-2018) 167 Figure 6.2 Main goals of public communication in four Haitian administrations 182 Figure 6.3. Measures to address misinformation and disinformation 193 Boxes Box 2.1 What is the centre of government? 43 Box 2.2 Functional reviews to limit overlapping mandates in Kazakhstan 48 Box 2.3 Fragility according to the OECD 51 Box 2.4 Aid coordination mechanisms in Rwanda 58 Box 3.1 Comparative approaches to long-term strategic planning 71 Box 3.2 Haiti's Strategic Development Plan (Plan Stratégique de Développement d’Haïti –PSDH) to 2030 72 Box 3.3 The benefits of a theory of change and a logical model 74 Box 3.4 The 2015 OECD Recommendation on Budgetary Governance 76 Box 3.5 Three organisational models of medium-term budgeting: the examples of Thailand, South Korea and Romania 82 Box 3.6 Integration of the budget into medium-term planning in East Timor 83 Box 3.7 The rationale for developing a public policy system 85 Box 3.8 Study and programming units (UEPs) in Haiti 88 Box 3.9 The legal framework for the evaluation of public policies in France 89 Box 3.10 The policy framework for evaluation in Benin 90 Box 3.11 The three pillars of a strong policy evaluation system 91 Box 3.12 Monitoring of the Emerging Senegal Plan (Plan Sénégal émergent - PSE) by the Operational Monitoring Office 94 Box 3.13 The Benin opendataafrica platform 95 Box 4.1 Why decentralise water management? 107 Box 4.2 Legal responsibilities of local authorities in public water management 110 Box 4.3 Public water management in practice: the preponderance of central power 112 Box 4.4 Clarifying responsibilities between levels of government: the OECD criteria 114 Box 4.5 Local government funding in Sweden: significant financial autonomy 116 Box 4.6 Overview of Equalisation Systems in OECD Countries 118 Box 4.7 Fragmentation of the institutional landscape of water management: overlaps, gaps and duplications 122 Box 4.8 Good practices in intergovernmental coordination at the OECD 125 Box 4.9 Intercommunity of the Palmes region in Haiti 127 Box 5.1 Responsibilities of the Office of Management and Human Resources 142 Box 5.2 Merit in the public service 143 Box 5.3 Towards a high public service system in Brazil 145 Box 5.4 Executive Recruitment Mission in France 147 Box 5.5 Support the identification and training of senior officials 148 Box 5.6 Renewal of competitions in France and Spain 150 Box 5.7 Supporting the human resources function in public administrations 155 Box 5.8 Making Decentralisation Work: a Handbook for Decision Makers 157 Box 6.1 Definition of open government principles 164 Box 6.2 Summary of the provisions of the OECD Recommendation on Open Government 166 Box 6.3 Ombudsmen's collaborative initiatives with stakeholders 168 Box 6.4 High-level political commitment to open government in Tunisia 170 Box 6.5 Institutional framework for stakeholder participation in Benin 172 10  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Box 6.6 Provisions of access to information legislation 173 Box 6.7 Process of drafting the law on access to information in Morocco 174 Box 6.8 Encouraging citizens through budget transparency in Cameroon 176 Box 6.9 Considerations for a stakeholder consultation initiative 178 Box 6.10 States General and national consensus of Beninese civil society organisations 179 Box 6.11 The UK government's communication strategy 183 Box 6.12 The Communications Careers Inventory for the Public Service in Canada and France 186 Box 6.13 Examples of training courses for national public communicators in the Netherlands 187 Box 6.14 The guide to public communication in Morocco 187 Box 6.15 The online consultation platform MonOpinion in Belgium 190 Box 6.16 Training in digital communication tools in Canada 192 Box 6.17 How to combat online misinformation in the UK 193  11 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Abbreviations and acronyms AFD French Development Agency (Agence Française de Développement) AfDB African Development Bank ANMF National Association of Border Mayors (Association nationale des maires frontaliers) ASEC Municipal Section Assembly (Assemblée des sections communales) CAB Budget Affairs Unit (Cellule des affaires budgétaires) CAED Coordination Framework for External Development Assistance (Cadre de coordination de l’aide externe au développement) AFD Water committees (Comités d’approvisionnement en eau potable) AfDB Administrative Council of the Municipal Section (Conseil d’administration de la section communale) ANMF Rural Administration Councils (Conseil d’administration des sections rurales) ASEC Interim Cooperation Framework (Cadre de coopération intérimaire) CAB Public Policy Coordination and Monitoring Unit (Cellule de coordination et de suivi des politiques publiques) CAED Economic and Social Development Council (Conseil de développement économique et social) CAEP French Development Agency (Agence Française de Développement) CASEC African Development Bank CASER National Association of Border Mayors (Association nationale des maires frontaliers) CCI Municipal Section Assembly (Assemblée des sections communales) CCSPP Budget Affairs Unit (Cellule des affaires budgétaires) CDES Coordination Framework for External Development Assistance (Cadre de coordination de l’aide externe au développement) CEA Aid Effectiveness Committee (Comité d’efficacité de l’aide) CEP Provisional Electoral Council (Conseil Électoral Provisoire) CFPB Property tax on built-up areas (Contribution foncière des propriétés bâties) CFT Territorial financial controllers (Contrôleurs financiers territoriaux) CGR/FPT Regional Management Centres of the Territorial Public service (Centres de gestion régionaux de la fonction publique territoriale) CIAT Inter-ministerial Committee on Land Use Planning (Comité interministériel d’aménagement du territoire) CIRH Interim Haiti Recovery Commission (Commission intérimaire pour la reconstruction d’Haïti) CMRA Ministerial Committees for Administrative Reform (Comités ministériels de la réforme administrative) CMRP Communauté des municipalités de la région de Palmes CNFPT National Centre for the Regional public service (Centre national de la fonction publique territoriale) CNMP National Public Procurement Commission (Commission Nationale des Marchés Publics) CoG Centre of government CRPP-GE Commission for the Reform of Public Finance and Economic Governance (Commission de réforme des finances publiques et de la gouvernance économique) 12  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 CSAFP Higher Council for the Administration of the Public Service (Conseil supérieur de l’administration de la fonction publique) CSCCA Higher Court of Accounts and Administrative Disputes (Cour supérieure des comptes et du contentieux administratif) CSFPT Higher Council of the Territorial Public service (Conseil supérieur de la fonction publique territoriale) CSOs Civil Society Organisations DAC Development Assistance Committee DCT Directorate of Territorial Collectivities (Direction des collectivités territoriales) DGI General Taxation Directorate (Direction générale des impôts) DINEPA National Directorate of Drinking Water and Sanitation (Direction nationale de l’eau potable et de l’assainissement) DSNCRP Document de stratégie nationale pour la croissance et la réduction de la pauvreté EG General Asssembly (États Généraux) FAES Economic and Social Assistance Fund (Fonds d’assistance économique et sociale) FDI Foreign Direct Investment FENACA National Federation of CASECs (Fédération nationale des CASEC) FENAFEMH National Federation of Women Mayors of Haiti (Fédération nationale des femmes maires d’Haïti) FENAMH National Federation of Mayors of Haiti (Fédération nationale des maires d’Haïti) FENASEC National Federation of ASECs (Fédération nationale des ASEC) FGDCT Local Government Management and Development Fund (Fonds de gestion et de développement des collectivités territoriales) GAC General Administration of Customs GDP Gross Domestic Product GNI Gross National Income HR Human Resources HRD Human Resource Director HRM Human resources management IGF Inspectorate General of Finance (Inspection générale des finances) IHSI Haitian Institute of Statistics and Informatics (Institut haïtien de statistique et d’informatique) IMF International Monetary Fund INAT National Institute of Territorial Administration (Institut national de l’administration territoriale) INET National Institute for Regional Studies (Institut national des études territoriales) M&E Monitoring and evaluation MARNDR Ministry of Agriculture, Natural Resources and Rural Development (Ministère de l’Agriculture, des Ressources naturelles et du développement rural) MCI Ministry of Trade and Industry (Ministère du Commerce et de l’Industrie) MDE Ministry of Environment (Ministère de l’Environnement) MEF Ministry of Economy and Finance (Ministère de l’Économie et des Finances) MGAE External Assistance Management Module (Module de gestion de l’aide externe) MICT Ministry of the Interior and Local government (Ministère de l’Intérieur et des Collectivités territoriales) MPCE The Ministry of Planning and External Cooperation (Ministère de la Planification et de la Coopération Externe) MSPP Ministry of Public Health and Population (Ministère de la Santé publique et de la Population) MTEF Medium-term expenditure framework MTPTC Ministry of Public Works, Transports and Communications (Ministère des Travaux publics, Transports et communications) NGO Non-governmental organisation ODA Official Development assistance OGP Open Government Partnership  13 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 OMRH Office of Management and Human Resources (Office de management et des ressources humaines) OPC Office for the Protection of the Citizen (Office pour la protections du citoyen) OREPA Regional drinking water and sanitation boards (Offices régionaux d’eau potable et d’assainissement) PARDH Action Plan for the Reconstruction and Development of Haiti (Plan d'action pour le relèvement et le développement d'Haïti) PCD Municipal development plans (Plans communaux de développement) PCRE I / II State Reform Framework Programme I / II (Programme cadre de réforme de l’État I / II) PEFA Public expenditures and financial accountability PIP Programmes d’investissements publics PME - 2023 State Modernisation Programme 2018-2023 (Programme de modernisation de l’État 2018-2023) MPCE National Deconcentration Policy (Politique Nationale de Déconcentration) MSPP Procedural Manual for the Implementation of the Planning, Programming, Budgeting and Monitoring and Evaluation (Procédure de mise en œuvre de la chaîne de planification, de programmation, de budgétisation et de suivi-évaluation) MTEF Strategic Development Plan for Haiti (Plan stratégique de développement d’Haïti) MTPTC Three-year investment programmes (Programmes triennaux d’investissement) NGO Growth and Poverty Reduction Service (Service pour la croissance et la lutte contre la pauvreté) ODA Small Island Developing States OGP National land use plan (Schéma national d’aménagement du territoire) OMRH National Water Resources Service (Service national des ressources en eau) OPC CIAT technical secretariat (Secrétariat technique du CIAT) OREPA Technical Implementation Unit PARDH Technical and Financial Partners PCD Programming and Study Units (Unités d’études et de programmation) PCRE I / II United Nations Development Programme PEFA National Deconcentration Policy (Politique Nationale de Déconcentration) PIP Procedural Manual for the Implementation of the Planning, Programming, Budgeting and Monitoring and Evaluation (Procédure de mise en œuvre de la chaîne de planification, de programmation, de budgétisation et de suivi-évaluation) PME - 2023 Strategic Development Plan for Haiti (Plan stratégique de développement d’Haïti) PND Three-year investment programmes (Programmes triennaux d’investissement) PPBSE Growth and Poverty Reduction Service (Service pour la croissance et la lutte contre la pauvreté) PSDH Small Island Developing States PTI National land use plan (Schéma national d’aménagement du territoire) SCLP National Water Resources Service (Service national des ressources en eau) SIDS CIAT technical secretariat (Secrétariat technique du CIAT) SNAT Technical Implementation Unit SNRE Technical and Financial Partners ST-CIAT Programming and Study Units (Unités d’études et de programmation) TEU United Nations Development Programme TFP National Deconcentration Policy (Politique Nationale de Déconcentration) UEP Procedural Manual for the Implementation of the Planning, Programming, Budgeting and Monitoring and Evaluation (Procédure de mise en œuvre de la chaîne de planification, de programmation, de budgétisation et de suivi-évaluation) UNDP Strategic Development Plan for Haiti (Plan stratégique de développement d’Haïti) Note: The acronyms of Haitian national institutions (ministries, units, committees, councils…) and of official national documents and programmes have been kept in French. 14  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Executive Summary In response to the political, socio-economic and environmental challenges facing Haiti today, the government has embarked on a path of public governance reform, notably with the 2018 -2023 Modernisation Programme (Programme de Modernisation de l’État 2018 -2023 - PME-2023) and the 2012- 2030 Strategic Development Plan for Haiti (Plan Stratégique de Développement d’Haïti - PSDH). It is in this spirit that the OECD is presenting this Public Governance Review of Haiti conducted on behalf of the Office of Human Resources Management (Office de management et des ressources humaines - OMRH). Building on the government's framework documents, it includes five areas of public governance reform that can promote sustainable and inclusive socio-economic development for all Haitians: government coordination, evidence-based decision making, multi-level governance, public service management and open government. Government-wide coordination of public policy is carried out by a number of institutions at the centre of government, whose functions are divided between the Presidency, the Office of the Prime Minister, the General Secretariat of the Council of Ministers and various ministries. However, there are gaps and overlaps between the mandates and in the actual activities of these institutions. Given the important role of development aid in Haiti, Technical Financial Partners (TFPs) also play a crucial part in supporting and implementing reforms. In order to strengthen coordination and harmonise the strategic vision and implementation of reforms, the government could:  Clarify the definition and mandates of the centre of government for policy development and implementation, strategic planning, decision making, monitoring and evaluation;  Strengthen and better define mechanisms for institutional coordination and collaboration to improve decision-making and coherence of government action;  Strengthen coordination with TFPs to ensure that projects advance national strategic priorities, that funding is aligned with national plans and that monitoring and evaluation frameworks link international support to government targets. The production and use of evidence is essential for strategic planning and budgeting. In this regard, Haiti's strategic plans have clear targets that can be measured by indicators, but they could be made more consistent with other planning instruments. In the area of public finance management, significant progress has been made in establishing a sound fiscal base, but important challenges remain. Finally, Haiti lacks a framework for monitoring and evaluation practices. The recommendation is therefore made to:  Revise the PME-2023 to improve its internal structure and consistency with other planning instruments such as the budget and the PSDH;  Better align the budget cycle with Haiti's strategic targets;  Strengthen some of the fundamentals of public finance, such as the consolidation of a single treasury account or greater transparency in the budgetary process;  Establish a strong institutional context for monitoring and evaluating public policies.  15 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Since the 1987 Constitution, the government has been striving to give effect to decentralisation and deconcentration and to improve governance at several levels. Given the difficulties of the legislative context and its implementation and the lack of capacity of the local authorities, it remains essential for the government to create a strong and operational strategic governance framework, to strengthen territorial coordination mechanisms and to translate national strategic decisions into concrete policies at the territorial level. For this purpose, this review makes recommendations to:  Clarify the current legal context for decentralisation and deconcentration and develop coordination mechanisms at multiple levels;  Strengthen territorial coordination structures and implement the national deconcentration policy;  Clarify and make more coherent the current territorial and administrative division. The PME-2023 has identified a number of critical issues in public sector development. Senior managers, in particular, have a key role to play and must be supported by specialist training and management practices. The principle of merit-based recruitment and career development must be continued. Haiti also needs to ensure effective cooperation between all players involved in human resources management, including by empowering and supporting Human Resources Managers (HRMs). This review thus stresses the need to:  Support leaders by placing competencies at the heart of the appointment process for senior public servants and strengthen their accountability in public management;  Strengthen the merit principle in recruitment and career management, in particular by publishing all public job offers and developing targeted measures for young candidates;  Clarify responsibilities and facilitate cooperation between the OMRH and HRMs. The Haitian government recognises the importance of establishing a culture of governance that promotes the principles of open government and is implementing initiatives to achieve it. However, significant efforts are still needed to ensure access to public information, protect civic space and institutionalise stakeholder participation. In this sense, strategic management of public communication is essential to support open government reforms and contribute to increased citizen participation. As such, this review makes recommendations to:  Create an enabling environment for open government reforms, e.g. by conducting awareness campaigns;  Establish a governance framework for open government reforms that facilitates coordination and collaboration with stakeholders;  Strengthen mechanisms for stakeholder participation by adopting a law on access to information in line with international best practice and by promoting citizen consultation initiatives;  Ensure strategic governance of public communication and define a strategic approach to public communication;  Consolidate functions and competencies for strategic and effective public communication;  Institutionalise the strategic use of public communication to foster citizen participation in public life through physical channels and online interactions. 16  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 The socio-economic challenges confronting the Republic of Haiti are to some extent the result of structural weaknesses in the Haitian governance system, largely inherited from a history punctuated by environmental, economic and political crises, including: administrative and economic centralisation and concentration, the policy capture and political fragmentation. These problems have hindered the implementation of effective and efficient public governance for the benefit of all Haitians and undermined the country’s ability to achieve its ambitious development goals. Thus, to help Haiti effectively address these challenges, this Review is structured around five key themes of public governance and offers recommendations to help the country achieve its priority reform objectives. Motivated by a strong desire for continuity and consistency with existing initiatives, the OECD is proposing a series of recommendations to the Haitian government in the fields of:  Whole-of-government coordination,  Fact and data-driven decision-making,  Multi-level governance,  The strategic management of the civil service, and  Open government. These themes are in line with Haiti's framework documents, including the 2018-2023 State Modernisation Programme (Programme de Modernisation de l’État 2018-2023 - PME-2023) and Haiti's Strategic Development Plan (Plan Stratégique de Développement d’Haïti - PSDH), and are intended to support their implementation and contribute to the achievement of the government's economic and social development ambitions. Considering and implementing the OECD's recommendations represents a crucial opportunity to consolidate the reforms of the past and launch new initiatives that could help make Haiti an emerging economy by 2030. This report has been produced with the support and financial assistance of the United States Agency for International Development, USAID. Towards better whole-of-government coordination by strengthening the centre of government Centres of government are the backbone of public governance systems, particularly in the coordination, decision-making and priority-setting functions. In a governance context punctuated by socio-economic, political, environmental and humanitarian crises, the development of strategic policies and political leadership alongside better coordination of government policies and actions in Haiti is critical to achieving its objectives. The Haitian government has legally mandated institutions to perform the key functions of the centre of government, notably coordination. The framework established by the decree of 17 May 2005 on the organisation of the central administration of the State, and the establishment in 2006 of certain institutions such as the Office of Management and Human Resources (Office de Management et des ressources humaines - OMRH) demonstrate the desire to modernise public administration and strengthen the coordination capacities of the State. Nevertheless, the legal construct of the centre of government is Diagnostics & recommendations  17 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 shaped by an anachronistic legal framework, with gaps and overlapping mandates that in practice impede the design, coordination and implementation of cross-cutting policies. These weaknesses are visible among the institutions of the centre of government and within such specific institutions as the Prime Minister's Office. Clarifying the mandate of the Haitian centre of government and its various players would help to overcome this fragmentation to better respond to multidimensional challenges. In addition, coordination in Haiti is hampered by inadequate levels of institutional collaboration and inherent weaknesses in the planning system. In particular, many councils or bodies, such as the Directors General Forum, seldom or never meet, and a number of networks of officials useful to participants have been allowed to lapse. Moreover, there is a lack of mechanisms for collaboration and communication between some key institutions, such as OMRH and the Ministry of Finance (Ministère de l’Économie et des Finances – MEF). On one hand, the large number of sectoral and thematic tables has made it possible to address a wide range of public policy issues, but tends to make coordination and decision-making more complex. Finally, the national planning system is characterised by a lack of coherence between sectoral strategic documents and central national strategies, which undermines the coordination of government action. The Haitian centre of government faces an additional complicating factor in its decision-making. The weight of development support requires an increased level of coordination to share information and ensure that projects advance national strategic priorities, that funding is aligned with national plans and that monitoring and evaluation frameworks can directly link development support to national strategic impact and results. Summary of recommendations 1. Clarify the mandate of the Haitian centre of government and its various players in order to overcome its fragmentation and better respond to multidimensional challenges.  Conduct a review of all laws, rules, decrees and regulations governing the organisation and operation of the institutions of the centre of government.  Implement regular functional reviews of centre of government institutions to strengthen monitoring and evaluation and promote an effective and efficient public sector.  Formulate a definition which formalises the mandate distinction between line ministries and the coordinating institutions of the centre of government.  Communicate across government on the coordination role of the centre of government.  Clarify and strengthen the mandate of the OMRH as a player in public governance reform in Haiti. 2. Strengthen, better define and communicate mechanisms for institutional coordination and collaboration to improve decision-making and the coherence of government action.  Strengthen the Prime Minister's Office’s and/or the Council of Minister General Secretariat’s strategic role in supporting government policy options’ quality and harmonisation prior to submission to the Council of Ministers and the Council of Government, by reviewing the proposed agenda based on various criteria.  Define and disseminate "rules of engagement", or a checklist, for collaboration between line ministries and the centre of government in Haiti to improve and sustain collaborative efforts within government.  Formalise and strengthen the various coordination mechanisms aimed at harmonising overall State policy. 18  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Making decisions based on relevant facts and data The Haitian strategic plans, PME-2023 and PSDH, were built on the successes and failures of the previous strategic plans. Thus, many good practices can be seen in the PME-2023: clear public policy objectives that can be measured by indicators, as well as an explicit logic model, allow for clear monitoring. However, the PME-2023 has methodological limitations and lacks coherence with other planning instruments that could hamper the generation of evidence. This could limit their effectiveness as strategic planning instruments. The Official Development Assistance (ODA) architecture in Haiti is complex, not very transparent and difficult to manage, given the increasing number of players, instruments and funding modalities. To overcome these challenges, the government could consider strengthening the coordination and planning capacity of the Haitian State to improve the alignment of ODA with national priorities through the following initiatives: 3. Promote the alignment of Technical and Financial Partners (TFP) actions with national priorities:  Develop and implement a national programme for international cooperation and management of external assistance in support of the national development strategy or policy.  Establish a coordinating body between the various institutions that interact with TFPs to address the fragmentation of interlocutors on the Haitian side. The government could also designate a unit as the secretariat of this network or committee, which would serve as the main interface between the Haitian government and the TFPs.  Strengthen the Directorate for the Coordination of NGO Activities (DCAONG) of the Ministry of Planning and External Cooperation (Ministère de la Planification et de la Coopération Externe - MPCE) to promote greater coherence between donor-funded NGO activities and national priorities, while preserving civic space.  Define the framework for public-private partnerships in development programmes. 4. Create optimal conditions for increased use of state structures in the context of donor cooperation. Indeed, as this chapter suggests, the current practices of external players often continue to favour non-state structures.  The centre of government, with the support of TFPs, could strengthen the state’s intrinsic capacities for strategic planning and developmental policy-making.  Develop increased coordination of monitoring and evaluation tools for TFP activities and national strategic plans.  Integrate and strengthen feedback mechanisms in the policy-making process at the national level and in the context of collaboration with donors, to ensure that evaluations and findings from monitoring reports are taken into account. 5. Consider extending the implementation period of the State Modernisation Programme 2020- 2023 in light of the global Covid-19 pandemic and issues related to political instability.  19 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 In terms of public financial management, the ambitions of the Haitian government and administration are enshrined in the Public Financial Reform Strategy and the Law of 4 May 2016. Over the past twenty years, significant progress has been made in establishing a solid budgetary base. However, challenges remain in putting the fundamentals in place, which need to be well anchored before more ambitious reforms can be considered. Nevertheless, some reforms can be implemented in parallel to move towards multi-annual and performance-based budgeting. These reforms focus on the development of a medium-term budgetary framework and the budget preparation phase. In the area of monitoring and evaluation of public policies, it is essential to emphasise that the main challenge is to clarify the institutional framework of these two practices. The current system remains fragmented. There is no governmental framework for the practice of evaluation. There is also no explicit definition of evaluation that is shared by all players. A framework to structure and frame monitoring and evaluation practices is needed to promote the production and use of evidence. Summary of recommendations 1. The strategic planning framework The Haitian government would benefit from revising the 2018-2023 State Modernisation Programme to improve its internal structure and coherence with other planning instruments such as the budget and the PSDH. This revision could help to:  Facilitate monitoring and a fortiori the implementation of the PME-2023 by defining indicators to measure the "intermediate" objectives of the PME-2023 and by supplementing all PME- 2023indicators with elements for their proper interpretation.  Strengthen and clarify the articulation of the PME-2023 and the PSDH.  Operationalise the PME-2023 by implementing the ministerial action plans presented at the final seminar of the PME-2023 Phase II Operationalisation Mission held on 23 March 2021 and ensuring that these action plans clarify how the budgetary programmes and investments defined by the government will be used to achieve the PME-2023’s objectives. 2. The budget as a tool for implementing strategic objectives In the interests of better aligning the budgetary cycle with Haitian policy objectives:  The preparation of the medium-term budgetary framework can be strengthened by carrying out macroeconomic and macro-budgetary forecasts prior to the formulation of the budget, and by strengthening the capacities of the study and programming Units.  The budget preparation phase can be improved by breaking down the budget allocations of the management entities by sector, giving the management entities sufficient time to prepare their expenditure proposals, and by strengthening coordination and communication between MPCE and the Ministry of Economy and Finance (MEF). However, the fundamentals of public finance must not be forgotten, as they form the basis of a budgetary architecture capable of supporting multi-annual and programmatic budgeting. Thus, it is crucial to:  Pursue the consolidation of a single treasury account in order to minimise the number of entities operating outside the budgetary process. 20  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Adopting a coherent and strategic approach to local development through more effective decentralisation and deconcentration and better multi-level governance To address wide socio-economic disparities, the government promulgated in its 1987 Constitution the principles of decentralisation, which are based on three distinct levels of local government (departments, municipalities and municipal sections), with the aim of structuring new administrative, economic, social and political relations. Nevertheless, a number of challenges in multi-level governance are preventing the proper implementation of decentralisation and deconcentration objectives: the inadequacy of the legislative framework for local government, difficulties in making it operational, the lack of consensus and a clear definition of their roles, and the resulting lack of capacity within local government. In order to promote and improve the effectiveness of decentralisation and deconcentration, within the context of sound public governance, it is essential to create a strong and operational strategic governance framework. This must be supported by planning instruments and underpinned by coordination mechanisms between the various levels of government and an effective system of performance monitoring and evaluation. In this regard, one of the main challenges of multi-level governance that the Haitian government itself has highlighted is its relative inability to translate national strategic decisions into specific policies at the territorial level. Indeed, a range of institutions at the central level are directly and indirectly involved in the management of local authorities in Haiti. The institutional landscape in this area is fragmented, especially through the fragmentation of the political and legal decision-making bodies that govern the management of the local authorities. At the local government level, it is also necessary to strengthen territorial coordination structures and to implement the national deconcentration policy (Politique Nationale de Déconcentration - PND). The aim of  Make the budgetary process more transparent.  Enable Parliament to play a more effective role in approving and monitoring the budget. 3. Monitoring and evaluation of public policies The Haitian government would benefit from establishing a solid institutional framework for monitoring and evaluating public policies. For this purpose, it should consider:  Adopting a clear and comprehensive definition of monitoring and evaluation within a formal framework, clearly distinguishing between monitoring and evaluation, clearly specifying the policies covered by these definitions and incorporating these definitions into a formal framework, whether statutory or not.  Clarifying and completing the government-wide institutional framework for monitoring and evaluating public policies.  Developing the evaluation function of the centre of government by giving a centre of government institution an explicit mandate to require and coordinate evaluations by line ministries and to promote the use of evaluations at the strategic level.  Rationalising and clarifying the institutional framework for monitoring in order to specify the mandates of the various players involved in monitoring and their articulation within the institutional framework for monitoring priority policies.  Organising a single performance dialogue between the centre of government and the line ministries.  Communicating on the monitoring of priority policies.  21 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 the PND is to gradually change centralised working habits, to involve decentralised players more in decision-making and to bring the administration closer to the people. It could thus guarantee a better distribution of public services throughout the country and thus the balanced development of the country. Mandate overlaps and difficulties in making the legal framework operational, poor coordination between levels of government and mismatches between local government resources and their legal mandates contribute to this situation. Summary of recommendations 1. Clarify the current legal framework for decentralisation and deconcentration through the following initiatives  Conduct a thorough review of the legal and regulatory framework of all laws, regulations and decrees adopted to implement decentralisation and deconcentration.  Establish and institutionalise the use of functional reviews to map the responsibilities, programmes and mandates of the central institutions with regard to decentralisation and deconcentration.  Clarify the attributions of the different levels of government (national, departmental, municipal and municipal section) to support the proper implementation and functioning of decentralisation.  Enable better multi-level governance by strengthening horizontal coordination mechanisms at the local and national levels, integrated into the decision-making process of the national government through increased coordination between levels of government. 2. Strengthen territorial coordination structures and implement the national deconcentration policy (PND)  Strengthen the operational dimension of the departmental technical council, delegations and vice-delegations order to implement the PND in a coherent and coordinated manner with local departmental and municipal bodies.  Decentralise anti-corruption mechanisms and entities.  Strengthen the security apparatus at the local community level. 3. Implement a number of initiatives to clarify and harmonise the current territorial and administrative division. The government could take the following actions:  Develop and communicate formal and objective criteria for territorial division.  Disseminate the results of delineation/demarcation exercises.  Identify and highlight the social and economic functional territorial areas throughout the country.  Formalise coordination mechanisms between local authorities, including associations of elected officials. 4. Harmonise the responsibilities of local authorities with their human and financial resources: 22  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Promoting strategic public service management to meet the needs of citizens The development of a competent civil service is an essential pillar of effective governance responsive to the needs of citizens. Building such a civil service requires laws, enforcement processes and structures to identify, attract, and develop the skills deemed necessary. This requires three elements around which efforts must be concentrated: a competent and effective senior civil service, the strengthening of the notion of merit throughout career management and clearly defined institutional responsibilities for each civil service actor. The State Modernisation Plan 2018-2023, in some of its working areas, emphasises the importance of these three aspects to modernise the Haitian state and better meet the expectations of citizens. These priorities resonate strongly with the OECD Council Recommendation on Leadership and Capacity in the Public Service. Nevertheless, the Haitian public administration faces many challenges, the resolution of which will determine the success of the implementation of the PME-2023. The professionalisation of the senior civil service appears to be a first step in the modernisation of the civil service. By the nature of their role, between the design and implementation of public policies, the major Haitian bureaucrats are driving forces in the implementation of the PME-2023. Indeed, PME-2023 can only be achieved if the agents of change, i.e., the managers, act as convinced defenders and advocates of the principles of good human resources management. This requires greater accountability in the appointment process for senior bureaucrats and specialised management of their careers. This career management must not only apply to senior bureaucrats, but must also be extended to all civil servants. This must be done by strengthening competency management. From identification to utilisation, attraction and development, talent management is a practical application of the concept of merit, ensuring that each job meets the expectations of potential talent and the needs of the administration. Broadening the recruitment process to include candidates from diverse backgrounds is a major challenge in Haiti. Communication strategies need to address more diverse audiences, focusing in particular on youth and reflecting the place of the Creole language in Haiti. Finally, the PME-2023 needs the stakeholders supporting it to have the necessary tools to assume their institutional responsibilities. Indeed, the OMRH does not have the strategic oversight that the Superior Council of Public Administration and the Civil Service (CSAFP) should in theory provide. HRDs are limited in their functions by their isolation and the lack of protection of their independence and neutrality. The clear definition of institutional responsibilities will certainly be a central issue in the forthcoming establishment of the Haitian territorial civil service.  Improve the capacity of municipalities to collect taxes and the current transfer system in order to reduce inequalities in services in the country and promote transparency in the spending of public funds and their impact on the welfare of citizens.  Improve human resource management in local and regional authorities. 5. Establish and strengthen strategic planning instruments to raise the effectiveness and efficiency of multi-level governance in Haiti.  Support the preparation and implementation of municipal development plans and ensure their consistency with national strategies.  Establish a performance monitoring system for decentralisation and territorial development policies to increase performance and clarity of results for citizens.  23 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 The recommendations relating to these three themes are based on the PME-2023, the OECD Council Recommendation on Public Service Leadership and Capability and feedback from many OECD countries. They are intended to highlight some of the pathways which must be taken for the professionalisation of the Haitian public service, and thus for the successful implementation of the PME-2023. Summary of recommendations 1. Support leaders  Put competencies at the heart of the appointment process for senior bureaucrats.  Develop capacity within OMRH and human resources directorates to implement and monitor the laws on the appointment of senior bureaucrats.  Enable the emergence of proactive management of the senior public service, with distinct practices reflecting the special position of senior bureaucrats.  Raise awareness of the importance of the role of the senior public service in workforce management and forecasting. 2. Strengthen merit in recruitment and career management  Centralise and make accessible to the greatest possible number of people the various public sector vacancies in Haiti on a dedicated portal.  Create, under the supervision of the OMRH, an interdepartmental reference system of competencies to be used job by job, to define in a homogeneous way the different competences common to the jobs of the civil service.  Strengthen the introduction of competitions for vacant posts with selection criteria available to all and evaluated on clearly defined principles.  Develop standardised, regular and mandatory evaluation of public servants, based on the mastery and reinforcement of competencies, as well as on the achievement of specific, measurable, acceptable, realistic and time-bound objectives.  Implement training courses at the central level, with a focus on competencies previously defined jointly by the ministries and the OMRH.  Clarify career mobility opportunities within the public service.  Ensure good quality jobs for young civil servants, so that Haitian youth are optimally represented in the development of public policies. 3. Clarify responsibilities and facilitate cooperation in personnel management  Rethink the strategic oversight of the OMRH.  Develop the ecosystem of human resources departments (HRDs) and create an interdepartmental human resources network that brings to the OMRH the reality that the HRDs experience on a daily basis.  Strengthen the independence and neutrality of the HRDs by organising and protecting their careers, as has been done for public accountants. 24  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Promoting more open, transparent and inclusive government to ensure that public policy reflects the needs of the population Political, social and economic instability constrains the very possibility of establishing a culture of transparency, accountability, integrity and participation in the country’s public life, in other words open government. Institutional strengthening and effective checks and balances are preconditions for any open government reform. The latter has a key role to play in defining and implementing a statutory and regulatory framework to protect civic space and restore stakeholder confidence, which are essential conditions for their collaboration and participation in public decision-making. A supportive framework is all the more crucial as stakeholders themselves face many challenges in the current framework. Political support for the principles of open government at all levels of governance must be accompanied by a clear commitment at the highest level of government to support the successful implementation of the initiatives promoted. Such leadership is needed to create and embed a change in the culture of governance towards the effective promotion of the principles of transparency, accountability, integrity and participation. However, it is still difficult to obtain government data and documentation on public actions, procedures and services at all levels. In addition, the use of consultation initiatives and citizen participation mechanisms remains limited at this stage, offering little opportunity for real collaboration between government and civil society. Similarly, public communication management is not yet sufficiently strategic and equipped to contribute fully to the government's public policy objectives and to the more specific reforms aimed at promoting the principles of transparency, integrity, accountability and participation of open government. A gradual and sustained deepening of initial efforts and an increase in the resources allocated to their implementation, both in the short and long term, will be essential to its full deployment. Summary of recommendations 1. Establish an enabling environment for open government reforms  Improve understanding of the principles of open government by conducting awareness campaigns that highlight the benefits they can bring to a wide variety of stakeholders representative of society, including groups which are most affected, vulnerable, under- represented or marginalised.  Ensure that the statutory and judicial framework of civil rights and freedoms is guaranteed and respected in order to promote and protect the country's civic space. 2. Establish a governance framework conducive to open government reforms  Consolidate a supportive policy framework for open government principles through specific initiatives and political commitment to these principles and initiatives.  Develop a strong institutional framework that facilitates coordination and collaboration with stakeholders. 3. Consolidate participation mechanisms with stakeholders  Adopt a law on access to information in line with international best practice, to structure the information system and thereby promote transparency and accountability by reducing the culture of secrecy in Haiti. It will be important for the government to ensure that the development  25 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 process is communicated in both Creole and French through various means, and that the law and its provisions are also available in both languages.  Increase proactive disclosure and awareness initiatives within all departments.  Further encourage citizen consultation initiatives. A special effort must be made to reach the most affected, vulnerable, underrepresented or marginalised groups in society.  Establish structured mechanisms for participation that promote engagement in public life. 4. Ensure strategic governance of public communication  Explicitly define, in strategic documents specific to public communication, its objectives, messages, channels, media, means and deadlines, taking into account the linguistic (e.g., French or Creole) and socio-demographic characteristics of Haitian audiences. 5. Consolidate functions and skills for strategic and effective public communication  Identify and develop the skills of public communicators to meet the needs of Haitian administrations and support professional and effective public communication.  Develop a "communicator's manual" or "public communication guide", and guidelines or practical guides to support personnel in the effective and strategic implementation of their missions.  Strengthen and professionalise initiatives in the use of all communication tools, including digital tools. 6. Institutionalise the strategic use of public communication to foster dialogue and strengthen citizen participation in public life  Utilise public communication as a lever to strengthen citizen participation. These citizen exchanges and dialogues must be conducted in French as well as in Creole, and through various channels to strengthen access to information and promote the participation of all in Haitian public life.  Promote and encourage citizen engagement through online interactions through the revitalisation of official websites and social networks of Haitian ministries and administrations.  Develop analyses of the audience and the uses, behaviours and perceptions of citizens online and on social networks.  Strengthen digital skills and the means to implement and monitor them. 26  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 This background chapter provides an overview of the country's historical, social, and economic legacy and helps situate the public governance reform efforts undertaken by the Haitian public administration. This background is intended to provide the basis for an understanding of the most pressing challenges facing the country that could put the country's ability to achieve its goals at risk. The chapter notes the improvement in socio-economic indicators as well as the government's commitment to ambitious reforms and development plans, highlighting the opportunity presented by the successful implementation of public governance reforms to improve public service delivery and promote inclusive growth for all Haitians. 1 Contextualising public governance in Haiti  27 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Introduction The Republic of Haiti lies in the western part of the island of Hispaniola, which it shares with the Dominican Republic, in the Caribbean region. With an area of 27,750 km² (CIA, 2021[1]) and a population of approximately 11.2 million (CIA, 2021[1]), Haiti is one of the most densely populated countries in the region. The country is divided administratively into ten departments, which report to a central government based in the capital, Port-au-Prince (Banque mondiale, 2020[2]). Haiti occupies a unique place in the history of the modern world, as it was the first country to declare its independence after a successful slave revolution (Popkin, 2011[3]). Since the country's independence on 1 January 1804, recurrent political and economic crises have greatly affected Haiti's governance frameworks. Despite this difficult history, the current government has set several goals to move towards emerging economy status, strengthen the rule of law, foster a more cohesive and inclusive society and renew and modernise public governance (Office de Management et des Ressources Humaines, 2018[4]). The State Modernisation Programme 2018-2023 (Programme de modernisation de l’État - PME-2023) and the Haiti Strategic Development Plan (Plan stratégique de développement d’Haïti - PSDH) reflect the government's determination to pursue a strong public governance reform agenda and to achieve clear social and economic development goals. These are encouraging signals that provide an incentive for the promotion and support of more effective, efficient, accountable and resilient public governance in Haiti. Sound public governance is a continuous process of formal and informal interactions within the state and between state players, non-state players and citizens. This process determines how public decisions are made, how public resources are used to perform public actions and how these actions are designed, implemented and evaluated to improve the well-being and prosperity of all. Good public governance also focuses on designing and implementing innovative whole-of-government responses to increasingly multidimensional challenges to improve the performance of national and regional economies for the benefit of citizens, businesses and communities. In this respect, the OECD has gained considerable experience in adapting the principles and practices of the public governance framework to specific political, institutional and cultural realities, whether national, regional or local. The OECD undertook an eighteen-month Public Governance Review of Haiti (hereinafter "the Review") to assess and diagnose the current governance environment and reform efforts, with a view to making specific recommendations for reforming the public governance framework. The Review proposes to address five topic areas of public governance that reflect and complement the goals of the Haitian government:  Improving the capacity to coordinate and lead the design and implementation of multi- dimensional government policies and services, including through the leadership of the centre of government (CoG), which comprises the Office of the Prime Minister (Primature), the Office of Management and Human Resources (Office de management et des ressources humaines - OMRH), the Ministry of Planning and External Cooperation (Ministère de la Planification et de la Coopération externe - MPCE) and the Ministry of Economy and Finance (Ministère de l'Économie et des Finances - MEF);  Strengthening the use of evidence in strategic and budgetary planning to improve policy development and service delivery, by more clearly articulating the planning of Haiti's national strategy and budget;  Promoting effective multi-level governance for better results, i.e. more effective coordination between central and local governments, to foster decentralisation;  Strengthening the government's capacity to strategically manage the public service workforce, and 28  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021  Increasing citizen engagement through the promotion of open government and the strategic management of public communication. Understanding the economic and political history of Haiti to better comprehend current issues of public governance The founding of the Republic of Haiti is irrevocably linked to the ideals of General Toussaint Louverture, who championed the idea of an independent Haitian state as early as the end of the 18th century. In particular, he promulgated a new constitution in 1801 that abolished slavery and racial discrimination in all aspects of public life and administration and declared that all those born in the colony were free and equal citizens (Dupuy, 2014[5]). After the Haitian Revolution (1791-1804) against the French colonial empire, Haiti proclaimed its declaration of independence on 1 January 1804, led by Jean-Jacques Dessalines, considered the "Founding Father" of the Haitian nation and proclaimed Emperor by the generals of the revolutionary army (Dubois, 2012[6]). However, the post-independence period was marked by the large compensation demanded by France for its financial losses in Haiti, which affected the financial stability of the country by creating a cycle of indebtedness to French and foreign banks, which had a major impact on the fiscal resources that successive national governments needed to provide public services to the population (Dupuy, 2014[5]). This unique past has left its mark on the Republic of Haiti to this day and makes Haiti a singular historical case. Moreover, since its independence, the Republic of Haiti has seen periods of economic, political and social transformation and reform, but also successive periods of political instability and internal struggles accentuated by extreme social stratification as well as numerous external interventions. The country's history has profoundly influenced the institutions and functioning of public governance and is a key factor in understanding the current governance challenges it is facing. This section presents the central governance issues in Haiti by examining some of the main milestones in its history, in order to better understand the links between the country's historical legacy and public governance and its challenges, focusing in particular on three aspects: policy capture, centralisation and administrative and economic concentration and, finally, recurrent political instability. Policy capture at the origin of severe economic and social inequalities The development of the state apparatus, shaped from the outset by the colonial period, was constructed as a source of power and resources for a small elite in the country, with periods of political instability and the overthrow of the elites. The post-colonial state was characterised throughout the nineteenth century by "the conflict between political elites for the achievement, exercise and retention of power and the reaction of peasants to working methods and conditions reminiscent of the period of colonial slavery, [which] created problematic relations between the state and society" (Etienne, 2007[7]). This framework for the capture of resources and public action by certain elites became particularly institutionalised at the beginning of the 20th century, first with the American presence in Haiti from 1915, and then under the regimes of François Duvalier and his son, Jean-Claude Duvalier. The stranglehold of the traditional Port-au-Prince elite on public action was consolidated during the nineteen years of the US Marines' presence on Haitian territory and resulted in the monopolisation of high public service positions in the hands of the traditional elites (Bellegarde-Smith, 2015[8]). This period was to reverse the socio- economic gains of the Haitian peasantry, who had become detached from the operation of the plantations (Bellegarde-Smith, 2015[8]). While François Duvalier subsequently supported the emergence of a new national bourgeoisie, the Duvalierists (Étienne, 2007[9]), the re-emergence of the traditional elite under the leadership of his son, Jean-Claude, was accompanied by the development of an export-oriented liberal economic model (Lundahl, 2013[10]). The capture of agrarian rent and the development of a low value- added industry contributed to the shaping of a predatory state to the detriment of the majority of the [... middle sections omitted for long document ...]  195 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 Recommendations In order to create a culture of governance that promotes the principles of transparency, integrity, accountability and stakeholder participation, the Haitian government can consider the following measures: 1. Creating an enabling environment for open government reforms  Improving understanding of the principles of open government by conducting awareness campaigns that highlight the benefits they can bring. Haiti could also consider the development of a single definition forged in collaboration with all stakeholders, taking into account the political, cultural and socio-economic context of the country. This can help to increase ownership and commitment of state and non-state stakeholders involved in reforms and open government initiatives. It is important to include a wide range of stakeholders representative of society, including the most affected, vulnerable, underrepresented or marginalised social groups, such as youth, women, rural populations and illiterate citizens, while taking into account their linguistic and demographic characteristics.  Ensuring that the legal and judicial framework of civil rights and freedoms is guaranteed and respected in order to promote and protect the country's civic space. This implies the adoption of measures to ensure respect for the freedoms of expression, assembly and association, the right to privacy and protection against discrimination. One way to achieve this is to increase the resources of the OPC for conducting surveys. In addition, it is important to encourage greater collaboration between the OPC, national authorities and other stakeholders in order to raise awareness among officials and better identify the needs of citizens. 2. Establishment of a governance framework conducive to open government reforms  Consolidating a supportive policy framework for open government principles through concrete initiatives and political commitment to these principles and initiatives, for example by including them in policy documents or through an open government strategy, perhaps in conjunction with an anti-corruption strategy. Increased commitment to the principles and initiatives by high-level public authorities, such as the President, ministers, legislators and other relevant political figures, could increase stakeholder participation. This is necessary to initiate a change in the culture of governance towards the principles of transparency, participation, integrity and accountability and at the same time to overcome the culture of secrecy still present in Haiti.  Develop a strong institutional framework that facilitates coordination and collaboration with stakeholders, with a mandate for two existing bodies: a high-level office or person who ensures that open government initiatives, including participation involving NGOs and stakeholders, get the necessary political support and are in line with the government's strategic priorities (e.g. the Office of the Prime Minister), on the one hand and an office or person in charge of the operational and technical part of the initiatives in direct contact with NGOs, capable of mobilising and bringing together the different members of civil society (e.g. the OMRH through its CRA), on the other. It is important that this mandate and its implementation be accompanied by a clear roadmap and the necessary resources - financial and human - to achieve it. Improved coordination with NGOs can help the government better channel external 196  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 assistance. Strengthening relations with NGOs will also enable greater stakeholder involvement in the development, implementation and monitoring of public policies and services. 3. Consolidating participation mechanisms with stakeholders  Adopting a law on access to information in line with international best practices, in order to structure the information system and thus promote transparency and accountability by reducing the culture of secrecy in Haiti. In addition, the drafting of such a law through a participatory process (involving stakeholders: civil society, private sector, media, etc.) would be a unique opportunity to demonstrate the Haitian government's commitment to the principles of transparency and participation. In order to reach the most vulnerable, underrepresented or marginalised social groups, it will be important for the government to ensure that the development process is communicated in Creole and French through various means and that the law and its provisions are equally available in both languages.  Increase proactive disclosure and outreach initiatives within all departments to ensure that relevant information and data is made available to citizens. Given Haiti's low Internet penetration, these initiatives should be accompanied by citizen awareness campaigns as well as the necessary training of public officials to communicate the importance of transparency.  Further encourage citizen consultation initiatives. On the one hand, Haiti could generalise ongoing efforts and encourage the creation of advisory boards in all ministries. The government also needs to ensure that the CRA has sufficient capacity to effectively provide information about public services, whether on the Internet, by telephone, or in person and to gather feedback from users to improve service delivery. The service commitment charter could also be used in all departments, with monitoring of its implementation, for example by publishing progress indicators. On the other hand, the government could introduce systematic and formalised stakeholder consultation throughout the policy cycle on policy initiatives and plans as well as on draft or proposed legislation. This could be done by considering the adoption of a Decree or law that creates a duty to consult stakeholders for any new law or regulation. In addition, it should make a special effort to reach out to the most affected, vulnerable, underrepresented or marginalised social groups in society, to ensure that a wide range of views and competences are taken into account, for example by ensuring that all opportunities for participation are communicated in Creole and French. Similarly, it would be useful to develop a document or manual for officials providing guidelines for participation.  Establish structured mechanisms for participation that promote engagement in public life. A first step in this direction would be to institutionalise and recognise the role of NGOs in order to provide a better framework for their activities, to avoid their proliferation and thus to promote better collaboration. For this purpose, the government could identify the priorities and needs of NGOs so that they can contribute more to the development of the country. The government could consider working with the Haitian community network to support and develop more initiatives to encourage local participation. It is important that opportunities for participation be available in both French and Creole to ensure that they reach a larger portion of the population and that they are truly inclusive mechanisms. 4. Ensuring strategic governance of public communication  Explicitly defining, in strategic documents specific to public communication, its goals, messages, channels, media, means and deadlines. The major issues and goals must then  197 OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 be broken down into more specific guidelines, for example in a plan that makes them operational, according to the responsibilities of the administrations and in synergy with the guidelines set at national level. The definition of a strategic approach supports a targeted approach to messages and audiences that takes into account the linguistic (e.g., French or Creole) and socio-demographic characteristics of Haitian audiences, including the most vulnerable and their preferences in terms of media and communication channels. Drafting and making these documents available to all could clarify the distinction between public and political communications, their respective goals and outcomes. They will also contribute to enhancing the transparency and accountability of information dissemination activities and more broadly of public intervention. In the longer term, with the institutionalisation of these practices, these documents would define not only the activities but also a budgeting of their costs, while clarifying the responsibilities, the coordination of measures, the expected results and impacts, as well as the indicators and measurement tools to be used to monitor and evaluate their implementation in the light of the goals set by the strategies 5. Consolidating functions and competences for strategic and effective public communication  Identifying and developing the competences of public communicators to meet the needs of Haitian administrations and support professional and effective public communication. The government could thus continue the efforts initiated by the OMRH to analyse and valorise the communication functions and ensure the presence, development and strengthening of capacities in this area, for example, in the context of a training plan for the whole government or for each of the administrations. Innovative approaches (e-learning courses open to all, toolkits, interactive training in minor groups) can help build competences. These modules could focus on press relations and digital media, given the current preponderance of media use in public communication, content creation, or the animation and management of social networks, for example. Relying on a catalogue or directory of professions would make it possible to better identify needs and recruitment and to offer the various communication functions adequate training throughout their career within the Haitian administration.  Developing a "communicator's handbook" or "public communication guide" , similar to the one used in Morocco, or practical guidelines or guides to support personnel in the effective and strategic implementation of their missions. The drafting of these documents or guidelines is also an opportunity to define guidelines that set the framework, the terms of the online presence, the procedures and the adaptation of messages to digital practices. This could also take the form of a charter, guide or guidelines for the use of social sites and networks, in particular to ensure their consistency and effectiveness in relation to the goals set, with the appropriate techniques, language and tone, while respecting the framework and the legal and regulatory framework in place. These guidelines could include elements relating to ethics, terms and principles of interaction with users and the conduct of public communicators and stakeholders.  Strengthening and professionalising initiatives in the use of all communication tools, including digital. This includes, on the one hand, the promotion of information sharing and dialogue with the public and within administrations, through websites, platforms, national (or local) portals and social networks. It is also a question, on the other, of taking up the challenge of diversifying the information and data provided by the administrations, as well as the channels and media of dissemination, in order to inform citizens not only about the current state of the administrations, but also about their decisions, opinions, the public services provided and activities, budgets and funding, or more generally about sectoral public policies. 198  OECD PUBLIC GOVERNAN CE REVIEWS: HAITI © OECD 2021 6. institutionalising the strategic use of public communication to foster dialogue and strengthen citizen participation in public life  Using public communication as a lever to strengthen citizen participation. Haitian administrations could, for example, consider innovative uses of traditional venues and channels such as radio, press, public signage and public gatherings, in order to meet and engage with citizens in the places and on the channels of communication where they are located, especially given the digital divide and the socio-demographic characteristics of segments of the Haitian population. Spaces and moments of debate can be organised in town hall squares, on popular radio stations, taking into account the places where citizens gather and their habits, or festivities and the public agenda. These exchanges will take place in both French and Creole in order to strengthen access to information and promote the participation of all in Haitian public life.  Promoting and encouraging citizen engagement through online interaction. This will involve revitalising the official websites and social networks of Haitian ministries and administrations, in particular through regular updates, the use of computer graphics, photographs and video sequences, but also, in the longer term and as these collaborative practices become established, through the integration of links to other resources or participatory mechanisms (such as forums, consultations, etc.) On institutional sites, as resources increase, administrations could encourage the development of contributory spaces where citizens could comment, give their opinion or assessment and ask questions, as in the case of the OMRH's initial efforts in this direction.  Developing analyses of the audience and the uses, behaviours and perceptions of citizens online and on social networks. This is based on analytical tools, in some cases already available, or even provided by the sites and social networks and on the demographic, sociological and cultural data of the regions and their audiences, so that online communication responds effectively to the expectations of the various categories, including those who are more isolated, vulnerable or less comfortable with these channels. In addition, the use of these analyses will enhance the development of more targeted and effective messages, with the format, tone and media tailored to specific audiences, such as youth or illiterate people and their preferences for accessing and using public information.  Strengthening digital competences and the means to implement and monitor them. These capabilities can be included in job descriptions and training plans of jurisdictions. These could focus on specific techniques (e.g. web design, data security, forum moderation and online interaction, etc.). 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Open government initiatives are actions taken by a public institution to achieve specific goals, ranging from the development of legislation to the implementation of specific activities such as online consultations, participatory budgeting or the co-production of public services (OECD, 2017[2]). 2 According to the fact-finding mission. 3 PME 2018-2023, p.14. 4 Analysis as of 17 February 2021 of the websites and social media accounts of the departments that responded to the OECD questionnaire. 5 Analysis as of 17 February 2021 of the websites and social media accounts of the departments that responded to the OECD questionnaire. OECD Public Governance Reviews HAITI STRENGTHENING PUBLIC ADMINISTRATION FOR RESILIENT AND SUSTAINABLE GOVERNANCE The government of  Haiti is undertaking public governance reforms to support sustainable growth and inclusive soc io‑economic development. This Review analyses areas such as whole‑of‑government co‑ordination, the  links between budgeting and planning, and the decentralisation process to improve development outcomes to which all levels of government in the country contribute. It also assesses the management of the civil service and the implementation of open government strategies and initiatives to involve citizens in the policy cycle. This Review provides concrete recommendations, aligned with key national strategic documents such as the State Modernisation Programme 2018‑2023 and Haiti’s Strategic Development Plan, to support public governance reform in Haiti. 9HSTCQE*hgeejb+ PRINT ISBN 978-92-64-76449-1 PDF ISBN 978-92-64-36214-7 2021 OECD Public Governance Reviews HAITI STRENGTHENING PUBLIC ADMINISTRATION FOR RESILIENT AND SUSTAINABLE GOVERNANCE